Not being able to get an adjustable voltage at a point invariably is due to a hardware that is either wrongly connected / incorrect specification / defective one. Dont assume that just because you have a pot that measures OK in Ohmic value, will behave the same way once powered up - the sliding contact on the wiper is an engineer's nightmare - particularly with cheap or low cost units.

"the voltage at the output of the LM 317 is just 11.5v though we move complet p1 and p2. input to the 317 is 22v."

Watch out - the Voltage drop is at about 10V and going by the LM317 data sheet (1.5A max) , you can barely manage to draw 150 mA from it - before the thermal limiter cuts in. Anyway check out the data sheet for the LM317 that you are using to ascertain the safe power dissipation.

Raghu